Navigating to a safer future - WAI ORA AOTEAROA - Collective Impact in communities
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WAI ORA AOTEAROA
Navigating
to a safer future
NEW ZEALAND
WATER SAFETY
SECTOR STRATEGY
2025
NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025 99
E kore, e kore, e pō, e pō The nothingness, the void, the night, the night
E ao, e ao The day, the day
Tākiri mai te ata The coming of day break
Kohiri ngā manu The birds call their greetings
Tino awatea It is dawn
Ka marama, Light and enlightenment
ka marama Ka ao, ka ao It is, it is, the world is forming anew
Ka awatea The dawn is here – a new day
Tihei Mauri ora! This is life in all its fullness
CONTENTS
Foreword: Message from the Minister for Sport and Recreation 1
Introduction: Message from the Chair of Water Safety New Zealand 1
The current drowning problem in New Zealand 3
New Zealand Water Safety Sector Strategy 2025 8
Appendices 18
100 NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025
FOREWORD INTRODUCTION
Minister for Sport and Recreation Water Safety New Zealand Chair
Kiwis love the water and with our long coastlines and the sheer proximity Welcome to the New Zealand Water Safety The sector has developed aspirational goals,
of most people to open water, we’re spoilt for choice when it comes to Sector Strategy 2025, our collective approach determined measurable targets, and agreed
water activities. But, with any water comes risk and sadly every year far to ensure everyone connects to and enjoys an action plan to achieve the sector outcomes.
too many people lose their lives or are injured in, on or around the water. the water safely. Achieving this vision will There has been strong collaboration during the
address the drowning problem in our country. development of this strategy. We now need to
With the demand for water safety services growing, including extended
As New Zealanders and visitors, we enjoy some continue to work constructively together to
patrol hours and more calls for help to coastguard services, the need
of the most magnificent waterways in the implement, monitor and evaluate our action
to make sure our frontline agencies can focus their energy and skills on
world. At the same time, they are not without plan, so that we reach our vision “Everyone
reducing the drowning toll and keeping New Zealanders safe in the water
risk and demand respect. Too many people connects to and enjoys the water safely”.
is crucial. The Government’s $63 million investment into the water safety
needlessly lose their lives or are injured in,
sector over the next four years will ensure frontline rescue services are As the lead agency of the sector, Water
on or around the water.
secured long term and the leadership, capability and support of the sector Safety New Zealand will drive the strategy’s
is enhanced. Drowning is a preventable public health implementation, and report back. The sector
problem in Aotearoa New Zealand. Although will also stand accountable for its results.
The water safety sector is run almost entirely by passionate Kiwi volunteers
overall rates have been trending down on a per However, no one organisation can make the
and reducing the drowning toll requires collaboration across the sector.
capita basis over the last 20 years, our drowning step change alone. This strategy is our collective
It takes a wide range of members, partners, educators and providers,
toll remains stubbornly high. Each fatality response.
the community, parents and families working together.
comes with a social and economic cost, as well
Ngā mihi ki te whānau whānui
I’d like to congratulate the water safety sector on its new strategy and on as a life cut short – often a young life. Many
the positive impact the collaborative approach of the water safety sector more can suffer a non-fatal drowning incident;
has had on prevention activities, education and frontline rescue services. often resulting in long-term consequences that
This strategy will help ensure the continuation of this collective effort to leave families and communities devastated.
ensure a high performing water safety sector that
The New Zealand Water Safety Sector Strategy
is connected and sustainable.
2025 commits sector partners to continue to
Thank you for all the work you are doing on behalf work together towards common goals with
of New Zealanders. greater impact and efficiency. This sector
Danny Tuato’o
alignment will ensure maximum buy-in to the
Board Chair
Grant Robertson vision and mission of the water safety sector
Minister for Sport and Recreation and will in turn support sector organisations to
incorporate this strategy into their own plans.
NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025 1
2 NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025
The current drowning problem in New Zealand
Five years of preventable fatal drownings
(2016 – 2020: 390 Incidents)
50 5.4
Fatality Statistics (2016 – 2020) Fatalities per 100,000 (2016 – 2020)
89 1.1
43 39 5 Years Rolling Ave 1.9
2.4
2020 1.59
2019 1.70
1.7 2.4
10 6
2018 1.70
21 2.4
2017 1.70
13 1.1
2016 1.68
9 0.8
22 3.3
5 2.1
18
11.1
0.7
23
25 2.1
3.4
17
Regional Statistics reference:
http://nzdotstat.stats.govt.nz/wbos/Index.aspx?DataSetCode=TABLECODE7512 NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025 3
71
7.5
Five year hospitalisations Hospitalisations per 100,000
(2015 – 2019: 943 incidents) (2015 – 2019)
287 3.5
5 Years Rolling Ave
2019 3.77
91 133 3.8
2018 3.74 8.2
2017 3.62
4.9
22 12 2016 3.76 3.6
2015 3.57
42 4.8
47 3.8
13 2.7
70 2.4
5 2
10
6.1
74 2.4
36 3
26 4 unknown 5.1
4 NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025 Regional Statistics reference: http://nzdotstat.stats.govt.nz/wbos/Index.aspx?DataSetCode=TABLECODE7512
NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025 5
Ponds 7
27
23
19
16
Foreshore
Home
Pools
Harbour
Calm Water Beach 7
Rocky
20
8
8
5 + Km from
Shore 31
20
Harbour
Marinas
0 - 1 Km
River/
Shore
Baths
Lakes
from
Bar
1
Institution Pools 1
Portable
83
76
Pools
Domestic Location 1
Drains 2
Thermal Pools 3
Creeks 4
Other Waters 4
Public Pools 4
(2016 – 2020: 390 incidents)
Surf Beach
Environments
1 - 5 Km from Shore 5
Estuary 6
Rivers
Streams 6
Spa Pools 8
Freshwater 26 Outside 6 Offshore 5
1
1
1
1
Other Recreational 1
95 Falls and Slips 80
26
Sailing
24
Gate Stand Up 1
Tubing/Canyoning
Paddle Boarding
Trailer Sailer
Water Skiing 1
Windsurfing
Canoeing
Motorised boats Rafting 5 Jet Ski 2
Outside
3
3
Commercial 2
Saltwater 27 Homes 16 Diving/ 5 Fishing
Jumping
Board 4
Shellfishing
Net Fishing 6
Riding
Jet Boat
over 4m
Baths 27
(5yrs+)
Rowing Craft/Dinghy 7
and Pools
(-5yrs)
Snorkeling 8
Inside Home 2
(Baths) Tramping/River Crossing 10
8
26
Rescuing Others 12
Scuba Diving 14
(2016 – 2020: 390 incidents)
Swimming
Motorised Boats 15
Land Based
Under 4m
Activities
Fishing
Free Diving 23
Kayaking
Age Gender
(2016 – 2020: 390 incidents) (2016 – 2020: 390 incidents)
00-04 23
• Male 75
05-14 16 • Female
15 - 24 64
315
25 - 34 55
35 - 44 53
45 - 54 62
Monthly Average
55 - 64 52 (2016 – 2020)
65+ 65 January 12
February 10
Ethnicity March 6
(2016 – 2020: 390 incidents) April 3
May 3
NZ European 175
June 5
Māori 83
July 3
Asian 43
August 2
Pacific Peoples 38 September 4
Other 37 October 5
November 9
Unknown 14
December 10
6 NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025
Previous New Zealand Water Safety Sector Māori Partnership
Strategy 2020 Te Tiriti o Waitangi is Aotearoa New Zealand’s founding document. The water safety
In 2015 the first New Zealand Water Safety Sector Strategy 2020 was developed and sector is committed to upholding the mana of Te Tiriti o Waitangi and the principles of
published. This document is the next iteration of that 2020 strategy. The strategy has Partnership, Protection and Participation in order to obtain better water safety outcomes
been developed by the Cross Sector Reference Group (see page 16) in consultation with for Māori.
a wide group of water safety stakeholders and a broad cross-section of multi-sector
The sector is committed to partnership with tangata whenua and the protection of Māori
related agencies, who each have a part to play in water safety and drowning prevention
culture and taonga. We value the distinctive point of view that tangata whenua bring to
in Aotearoa New Zealand.
strengthen the connection to water and the crucial role of water safety and safeguarding
The 2020 strategy sought to increase the sector’s ability to work together to reduce the lives of Māori whānau and communities. We believe a strong bi-cultural foundation is
drowning deaths and injuries. The sector aimed to achieve three outcomes: critical to our national identity and wellbeing.
Culture change – a changed culture in which every New Zealander understands the
Working towards a true partnership is highlighted in this strategy by introducing the
risks associated with water and has the ability to survive in, on or around the water;
three Māori focus areas of the Wai Puna model that encapsulates the importance
Reduced costs – minimised social and economic costs from preventable drowning of strengthening connection to water through Whakapapa: Attitudes & Beliefs,
and water related injury and hospitalisation; and Mātauranga: Knowledge and Tikanga: Behaviour, which reflect a Māori worldview. [1]
Wai Puna is an evidence-based model that is grounded on the importance of strengthening
High performing – a world leading water safety sector.
people’s connection to the water for positive health outcomes and subsequently
These three outcomes are still considered relevant. The reduced cost outcome has been improving water safety knowledge, attitudes and behaviour. From a Wai Puna approach,
amended to highlight the primary outcome, that of “Reduced drowning fatalities and water safety is not merely about teaching water skills alone. It starts with a deeper
drowning related hospitalisations”. The high performing outcome has been reworded understanding and respect for wai, an understanding inherent for Māori, that can also
to bring focus to the sector being sustainable, collaborative and coherent. lead to the provision of more purposeful drowning prevention for all New Zealanders.
ta l Peop Water Safety New Zealand is currently in the process of formally partnering with
as the Wai Puna Kaihautū Leadership Rōpū of Coastal People: Southern Skies Centre
Co
le
of Research Excellence. The water safety sector is committed to supporting greater
use of a kaupapa Māori approach to water safety for tangata whenua. We value the
need for culturally distinctive pathways that enable tangata moana (people of the sea)
and all New Zealanders to participate and understand the critical link between water
safety and Māori Mātauranga: Knowledge.
ou
es
S
t her n S k i
NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025 7
New Zealand Water Safety Sector Strategy 2025
Wai Ora Aotearoa
VISION MISSION
Everyone connects to and enjoys the water safely To work collectively to instill respect
for the water, and encourage
Whakapapa: Attitudes & Beliefs safe behaviours/tikanga by all people
The source of water safety knowledge in Aotearoa New Zealand
so that drowning fatalities and
Mātauranga: Knowledge Tikanga: Behaviour
The deepening of water The application of water
injuries are reduced
safety knowledge safety knowledge
This vision and mission is derived from the Wai Puna framework with the central focus of
strengthening our connection to the water through whakapapa, mātauranga and tikanga [1]
8 NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025Water safety sector’s outcomes and measures
OUTCOMES DESIRED TRENDS INDICATORS TARGETS
The population's ability to Public Attitudes and Behaviours A statistically significant year-on-year increase
Culture change
understand risky behaviours surveys to assess the population's in improved attitudes and behaviours as
People’s water safety associated with fatal beliefs about, and responses to the demonstrated by the "Attitudes and Behaviours"
competencies are increased and and non-fatal drowning dangers in, on and around the water survey and the "Use of life jackets" survey from
increases over time a 2021 baseline
they modify their behaviours in
on and around water based on Water safety The reach of aquatic education Year-on-year increase in people participating in and
risk awareness. competencies to survive across pool, beach, boat and river competencies achieved in water safety education
in, on or around the water programmes, as evidenced by;
are improved over time The achievement of key water • a 50% increase in students participating in pool-
based Water Skills For Life programmes from
survival skills
a 2019-20 baseline of 200,000, and
• a 10% increase in the Water Skills For Life
achievements of the two fundamental water
survival skills from the 2019-20 baseline
Reduced drowning The average annual rate Annual rate of drowning fatalities Reduce per capita preventable drowning deaths
of fatalities consistently per 100,000 of New Zealand using a 5 year rolling average, of 25% by 2025.
fatalities and drowning trends down over time population (lag indicator) Target the per capita fatalities moving from
related hospitalisations 1.59 to 1.19 by 2025
The social and economic costs The average annual rate Annual rate of drowning related Reduce per capita preventable drowning related
of drowning and water related of drowning related hospitalisations per 100,000 hospitalisations using a 5 year rolling average,
injury and hospitalisations are hospitalisations consistently of New Zealand population of 12% by 2025. Target the per capita
trends down over time (lag indicator)
minimised hospitalisations moving from 3.7 to 3.25 by 2025
High performing The water safety sector is Integration of the Water Safety Member organisations have the Water Safety
sustainable and able to meet Sector Strategy into each of the Sector Strategy 2025 incorporated into their
The New Zealand water identified needs and adapt Cross Sector Reference Group’s own strategic annual and long term planning
safety sector is sustainable, to changing circumstances own organisations strategies where relevant
collaborative and coherent
The sector is aligned and The number of water safety At least 75% of the Water safety sector’s actions
integrated to achieve the sector actions implemented in the Water Safety Strategy’s implementation
greatest collective impact plan are delivered by the end of 2025
NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025 9Strategic Areas of Focus
EDUCATION There is an effective water safety education framework in place, designed to promote behaviour
AND TRAINING change and skills development, for all ages and abilities in Aotearoa New Zealand.
PAGE 11
DATA, RESEARCH Evidenced based decision making is driven and supported by a trusted “knowledge hub” that provides relevant
AND INSIGHTS
PAGE 12 data, research and insights to focus investments and response activities to achieve desired sector outcomes.
COMMUNICATION, There is strong sector collaboration utilising members strengths and capacity.
COLLABORATION
AND PARTNERSHIP There is sustainable engagement at a local, regional and national level to ensure best practice is enacted,
PAGE 13
and cost effective solutions and efficiencies are adopted.
LEADERSHIP, ADVOCACY Water safety objectives and interventions are advocated for, and key decision makers influenced,
AND INFLUENCE in order to increase public and political support for water safety and drowning prevention.
PAGE 14
FRONTLINE
Prevent or reduce drowning and water related injuries through providing targeted supervision and surveillance,
PREVENTION,
SEARCH AND RESCUE safety services, guidance, and if necessary rescue, of those at the point of being exposed to water hazards.
PAGE 15
Implementation, monitoring and evaluation
Water Safety New Zealand will be responsible for leading the implementation The development of a sector wide monitoring and evaluation framework will gauge
of the Water Safety Sector Strategy. It will undertake this role in consultation with progress, effectiveness and efficiency of the water safety sector, generating the
the Cross Sector Reference Group and with the support of sector organisations. expected outcomes. It will ensure activities undertaken move the sector closer to
delivering on the stated outcomes.
More specifically Water Safety New Zealand will:
The monitoring and evaluation framework will enable the sector to measure and
• Recruit an implementation manager to project manage the sector strategy,
report on the expected outcomes effectively and efficiently each year. This will
• Develop an implementation plan to deliver on the strategic actions, fulfill the statement of service performance reporting obligations with the sector's
• Form sector working groups to support the delivery of the action plan. funders, and the individual organisations’ evaluation of their involvement working
towards the sector's strategic areas of focus.
10 NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025Actions for implementation EDUCATION AND TRAINING
• Develop an Under-Fives Action Plan including expanding
existing initiatives and developing effective campaigns to
improve whakapapa/ attitudes and beliefs, mātauranga/
the knowledge and tikanga/ behaviours of parents and
caregivers.
• Make Water Skills for Life and water safety education
an integral part of children’s and young people’s learning
through the Health and PE Curriculum. Embedding
programmes into environment, aquatic activities and sports
related practices, to make water safety skills training
fundamental to ‘real life’ experiences and to influence
a culture change around water.
• Develop Māori water safety education programmes that
reflect Māori values and aspirations and strengthen the
connection to wai/water.
• Focus on reducing male drowning and improve decision
making in the 15-34 age range.
• Implement programmes and provide tools that aid people’s
awareness of the difference between their perceived
competencies and actual competencies.
• Focus on reducing 50+ male recreational boating drownings
via improved decision making and risk awareness.
11DATA, RESEARCH AND INSIGHTS
• Establish fit for purpose data collection methodologies
with sector organisations and government agencies to
improve evidenced based decision making.
• Work with organisations to strengthen the consistent reporting
of water related incidents, injury and hospitalisation.
• Establish and agree definitions and protocols around data
capture and use. Establish data hygiene, sharing, management,
privacy, data sovereignty, and ethical use.
• Use centralised data to develop evidenced based insights into
water safety interventions.
• Develop appropriate prevention strategies in conjunction
with public health officials and suppliers to the sector.
• Form a repository of Aotearoa New Zealand and international research
on drowning prevention, water safety and water competency so that
information is collected at a single point and is easily accessed and
disseminated.
• Highlight data and research gaps. Undertake and fund culturally
appropriate research that is prioritised and focused on key issues.
Engage with the research findings to develop, implement and
evaluate new initiatives.
• Promote the citing and use of Aotearoa New Zealand research
both locally and internationally.
• Acquire new participation and other data sources for
benchmarking and indexing risk and deriving insights.
12COMMUNICATION, COLLABORATION
AND PARTNERSHIP
• Develop agreed sector position statements for key issues,
building consensus across the sector, underpinned with
consistent policies and communications.
• Collaborate on shared opportunities of national significance,
through both traditional and digital channels.
• Develop a sustainable approach, partnering and collaborating
with Māori on water safety and drowning prevention, reflecting
the partnership principle of Te Tiriti o Waitangi.
• Expand joint sector strategic planning activities and deliver
greater cross-sector integration and effective outcomes.
• Complete the implementation of the Regional Strategy pilots
and develop a Fresh Water Strategy for the sector.
• Targeted interventions are in place for overrepresented groups,
activities and locations.
• Open discussion and collaboration with the Pacific region
regarding establishing tuakana-teina /mentoring relationship
pathways for three New Zealand Pacific Territories and three
Pacific region Islands by 2025.
• Engage and collaborate with organisations that have a significant
role to play but may not have a major water safety or drowning
prevention focus.
13LEADERSHIP, ADVOCACY AND INFLUENCE
• Water Safety New Zealand will lead the implementation,
monitoring and evaluation of the sector's strategic actions
in conjunction with sector agencies.
• Water Safety New Zealand will lead and advocate agreed sector
positions for key policy statements.
• Ensure the sector is financially sustainable to achieve its mission,
and multi-year funding from government is secured
in perpetuity.
• Ensure the water safety sector structure, form and function is
considered as part of the Ministry of Transport's sector review.
• In partnership with the sector organisation’s Māori advisors,
Water Safety New Zealand will develop the water safety sector’s
strategic direction for Māori, and will support the development
of the sector’s capability to work with Māori.
• Develop a water safety sector local government engagement
strategy that focuses on relationship building and engaging
with local government planning.
• Engage with central government to develop a greater shared
understanding of how we can work together for the public good
of water safety and drowning prevention.
14FRONTLINE PREVENTION,
SEARCH AND RESCUE
• Continue to evolve each organisation's structure and services
individually to meet the changing needs of the community
and ensure they are fit for purpose.
• Strive to develop 'step change' initiatives, particularly in
prevention that can focus on target areas without letting
slip what is currently being achieved (e.g. via technology).
• Frontline agencies will develop their capability for working
in partnership with Māori and other high risk groups and
ensure their service delivery is effective for all.
• Improve support and resourcing for volunteer workforces
to ensure the frontline services that depend on them can
be maintained.
• Continue to exploit and look for new opportunities where
greater cross-agency collaboration can achieve better
operational outcomes.
15Cross Sector Reference Group –
maintaining our focus and commitment
The water safety sector’s Cross Sector Reference Group was established by sector
agreement at the Water Safety New Zealand AGM in late 2014. The group is Coastguard Boating Education is the lead The NZSAR Council provides national strategic
committed to improving water safety in New Zealand, and is made up of a number provider of boating courses throughout New governance to the New Zealand search and
of leading organisations in the water safety space. Zealand, offering courses to suit all abilities, rescue sector. The NZSAR Secretariat supports
types of boating and training pathways. the NZSAR Council, and provides strategic
coordination for search and rescue in New
Zealand through support services, policy advice,
and implementation of NZSAR Council decisions.
Water Safety New Zealand is the national Coastguard New Zealand provides Drowning Prevention Auckland is a lead
leading agency for the New Zealand the primary maritime search and agency for regional water safety coordination
and education in the Auckland region. Te Whai Oranga
water safety sector. Through leadership, rescue service in New Zealand.
advocacy, policies, initiatives and Recreation Aotearoa is the voice of recreation
funding programmes, Water Safety New in Aotearoa, representing all professionals in
Zealand works with water safety sector the industry. It empowers members to deliver
organisations, individuals and the public the quality recreation experiences, places and
Maritime New Zealand ensures that all
to promote water safety, and reduce the facilities, that fuel a more active, healthy and
maritime activities are carried out safely,
incidence of drowning and water related Swimming New Zealand is the connected New Zealand.
with minimal impact on the environment
injury in Aotearoa New Zealand. National Sports Organisation (NSO)
and on our nation's security. ta l Peop
as
for swimming in New Zealand.
Co
le
It has an active role in the promotion
of water safety, learn to swim,
ou
es
S
t her n S k i
Water Skills for Life education and
certification of swimming instructors Water Safety New Zealand is currently in the
and swim schools. Mountain Safety Council is a national process of formally partnering with the
Surf Life Saving New Zealand is one of
organisation with a mandate to encourage safe Wai Puna Kaihautū Leadership Rōpū of Coastal
the lead agencies for drowning prevention
participation in land-based outdoor activities. People: Southern Skies Centre of Research
in New Zealand and the primary agency for
beach and coastal safety. Excellence.
16 NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025Conclusion
The implementation of this strategy will be owned by the sector and driven by Water
Safety New Zealand, who will play a lead role in ensuring its goals are monitored and
measured. Sector participants include organisations across prevention, education,
rescue, academia, regulation and recreation. We thank all contributors and interested
parties for the input. Our problem is not one-dimensional, it is complex by nature.
By working together, we will be more efficient and have more impact in achieving our
desired outcomes.
We need to ensure there are changes to Aotearoa New Zealand’s water safety culture
in the face of entrenched behaviours and attitudes. We live in an ever-changing world,
with the global events of 2020 certainly a reflection of that. We will need to be agile
and adapt as we face future challenges.
Now is the time to reset and generate the momentum needed to advance our mission
substantively, by working together so that more lives can be saved. We need the
support of all our stakeholders, ongoing dialogue and deliberate action – non-profit
organisations, business, government (both central and local), policy makers, parents
and concerned community members can all act to help improve water safety and
prevent drowning in Aotearoa New Zealand.
11 March 2021
NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025 17Acknowledgments APPENDIX 1:
Water Safety New Zealand would like to acknowledge the Cross Sector Reference Group, The development process of
the Māori advisory group, our monitoring agencies Sport NZ and ACC, and the wider the New Zealand Water Safety
water safety sector partners for providing content and helpful consultation feedback Sector Strategy 2025
during the development of this strategy. At the Water Safety New Zealand Drowning Prevention Summit 2019, there was
strong feedback from attendees that members and interested parties should have the
opportunity to contribute to the development of the new Water Safety Sector Strategy.
References Water Safety New Zealand engaged a project manager in early 2020 to coordinate the
process, develop the consultation document and collate and combine feedback.
[1] Phillips, C. (2020). Wai Puna: An Indigenous Model of Māori Water Safety and Health
in Aotearoa, New Zealand, International Journal of Aquatic Research and Education, A significant phase in the development process was the holding of Cross Sector
12(3) Article 7. Reference Group workshops. At these workshops the group considered the previous
strategy, analysed data and considered the evolving patterns of drowning and other
[2] World Health Organisation, "Preventing drowning: an implementation guide,"
factors that might impact drowning prevention and water safety over the next five
World Health Organisation, Geneva, 2017.
year period.
[3] Spoonley, P. Gluckman, P. Bardsley, A. McIntosh, T. HuniaR. and Johal, S. e. a.
A consultation document was released mid-year to enable interested local, regional
"He Oranga Hou: Social cohesion in a post-COVID world." The University of Auckland,
and national agencies and other multi-sector groups interested in water safety and
Auckland, 2020.
drowning prevention outcomes to feed back into the process. This feedback was
[4] Peden, A. E. Franklin, R. C. and Clemens, T. "Exploring the burden of fatal drowning discussed by the Cross Sector Reference Group and fed into the development of the
and data characteristics in three high income countries: Australia, Canada and final draft strategy. The final draft strategy was released in November 2020 to close
New Zealand," BCM Public Health, 2019. the consultation loop and provide interested stakeholders with an understanding of
[5] van Beeck, E. F. Branche, C. M. Szpilman, D. ModellJ. H. and Bierens, J. J. how feedback was incorporated.
"A new definition of drowning: towards documentation and prevention of a global COVID-19 significantly impacted the early development process of the strategy.
public health problem," Bulletin of the World Health Organisation, vol. 83, no. 11, Face to face meetings were not able to be conducted for the first two workshops.
pp. 853-856, 2005. However, all agencies committed to keep momentum going by holding online meetings.
[6] Beerman, S. Bierens J. J. , Clemens, T. Meddings, D. Rahman, A. and Szpilman, Water Safety New Zealand and the Cross Sector Reference Group wished to ensure that
D. "Clarification and Categorization of Non-fatal Drowning," Workshop, Toronto, all interested parties were properly consulted and had the opportunity to provide input
Canada, 2018. during a time of nationwide uncertainty.
18 NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025APPENDIX 2: 2. 5 – 13 year olds
Supporting Data
This is the lowest drowning cohort and the time when aquatic water safety education is
established through Water Skills for Life and other aquatic programmes. 2019 data insights
1. Under Fives indicate the following achievements from a sample of up to 64,000 students.
Causal factor: Lack of (or minimal) active adult supervision.
Get into and go under the water safely 98%
Intervention: The bathmat water safety campaign supported by
Plunket was introduced in 2011. Drownings have
reduced to an average of 3 annually in 2020. Float and regain feet 96%
Move under water for 5 counts 94%
50 Move 15m 86%
Scull for at least 3 mins 65%
40
Tread water for 3 mins 58%
30
Move 100m, or, for 5 minutes non stop and confidently 51%
20
10
0 43 8 28 7 32 5 17 10 24 2 16 6
2000 - 2004 2008 - 2012 2016 – 2020
• All Under 5 yrs drownings • In the home • Outside the home • Outside the gate
NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025 193. Swimming 4. Males 50+ Recreational boating
Boating fatalities by region per 100,000 (2016 – 2020)
Most at risk: • Males 15 – 34 years.
• Māori, Pacific Peoples and Asians over-represented.
Northland 4.4
Intervention: The Swim Reaper campaign, supported by ACC and NZSAR
was introduced in 2017. Taranaki 1.9
Over the four year period fatalities among this cohort
have reduced significantly among NZ European males. Otago 1.7
Hawke's Bay 1.5
Southland 1.1
Males 15 – 34 years preventable fatalities
(2016 – 2020)
Auckland 1.0
30
Bay of Plenty 0.7
25
Waikato 0.5
20
Manawatū-Whanganui 0.5
15
Canterbury 0.4
10 Wellington Region 0.2
5
0
2016 2017 2018 2019 2020
• NZ European • Asian • Other/Unknown
• Māori • Pacific Peoples
* Tasman Region, Nelson Region, Marlborough Region, West Coast Region.
20 NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025Males 50+ Recreational boating (cont) 5. Insights Gaps
Incidents where the victims had no intention of being in the water when on land,
Locations represents approximately a third of the 390 preventable drowning fatalities in the
period 2016 – 2020.
River /
Harbour Bar
These incidents are random by age, geographic location and environments
0-1 km but falls/slips are a major contributor. In addition, alcohol appears to be a very strong
from shore
contributing factor, and drugs and mental health a possible contributing factors.
5+ km
from shore The majority of victims are NZ European males and a disproportionate number have
been unemployed at their time of death.
Lakes
1-5 km Further Insights work is required to identify interventions and support in this area.
from shore
Harbour Five years (2016 – 2020)
Rivers
Marinas Preventable fatalities
FATALITIES 1 2 3 4 5 6 7 8 9 10 11 12 Alcohol involved 66
Lifejacket use Unemployed 34
Drugs involved 16
Not Onboard Mental health problems 16
Worn
Carried but
not Worn
Unknown
Worn -
Incorrectly
Fitted
FATALITIES 1 2 3 4 5 6 7 8 9 10 11 12 13 14 15 16 17
NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025 21EMERGING TRENDS 7. Underwater diving (scuba, snorkeling, free)
Preventable Fatalities (2016 – 2020)
6. Asian
Age
Asian - Preventable Fatalities (2016 – 2020) 16
14
12
15 10
8
14 6
4
13 2
12 0
05-14 15-24 25-34 35-44 45-54 66-64 65+
11
Ethnicity
10
30
9 25
8 20
FATALITIES
15
7
10
6 5
5 0
Māori NZ European Asian Other/Unknown Pacific Peoples
4
Purpose
3
10
2 9
8
1 7
0 6
FATALITIES
5
Auckland
Bay of Plenty
Canterbury
Hawke's Bay
Northland
Tasman
Waikato
Wellington
4
3
2
1
0
• Swimming • Shellfishing • Other
Auckland
Bay of Plenty
Canterbury
Gisborne
Hawke's Bay
Manawatū-
Whanganui
Marlborough
Northland
Otago
Southland
Taranaki
Waikato
Wellington
• Fishing • Net Fishing • Spearfishing
• Fall/Slip • Private • Submersion
22 NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025 • Shellfishing • Leisure • Exploration • Spearfishing • Learn to Dive • OtherAPPENDIX 3 Western notions of water safety reflecting the importance of a strengthened connection
to, and respect for, water that can lead to the provision of more purposeful drowning
What is new in the 2025 Strategy? prevention for all New Zealanders.
A broader focus and wider consultation Five strategic areas of focus
To help us ensure the preventable drowning toll in Aotearoa New Zealand is reducing,
Five strategic areas of focus have been explicitly stated in this iteration of the strategy.
and that we are building towards our vision, the water safety sector must be
These areas of focus are considered by the sector as the key “pillars”, with each playing a
collaborative, share information and resources, and have common strategic areas
significant role in the achievement of the targets of the sector.
of focus which will enable us to work together to implement our action plan.
During the development of this refreshed sector strategy, there was significant
Sector measures and dashboards for the areas of focus
consultation across the sector1. Feedback received was that much of the previous
strategy’s intent remains valid – the vision, mission and outcomes of the 2020 sector Desired trends, indicators and targets have been set against each of the three sector
strategy were still considered well founded, as were many of the strategic actions and outcomes. Detailed dashboard measures will be developed against each action in the
challenges faced by the sector from the previous strategy. monitoring and evaluation framework relating to each of the five areas of focus.
However, for this next iteration, it was agreed that a broader water safety focus was This will provide high level assurance that the implementation of the action plan behind
needed as opposed to the narrower drowning prevention focus. the strategy, is moving the water safety sector in the direction of our overall desired
outcomes.
Water safety refers to the procedures, precautions and policies associated with safety
in, on, and around bodies of water, where there is a risk of injury or drowning.
An action plan and implementation plan
Drowning prevention is the interventions and strategies delivered through programmes
to national and local communities. An action plan has been developed for the 2025 strategy and has been agreed for
the next 5-year period. Each action explicitly relates to one of the five strategic areas
There was strong consultation feedback that the vision and mission should be restated
of focus. Water Safety New Zealand will be responsible for leading the implementation of
with positive wording although still retain the underlying intent that “no one drowns”.
the Water Safety Sector Strategy 2025. It will undertake this role in consultation
The Wai Puna model is new to the 2025 strategy and highlights the water safety sector with Cross Sector Reference Group and with the support of sector organisations. The
working towards true partnership with Māori. Wai Puna is a theory of Māori water implementation plan will be closely monitored and updated by Water Safety New Zealand.
safety and health developed by Dr Chanel Phillips (Ngāti Hine, Ngāpuhi), co-director of
Te Koronga Indigenous Science Research Theme and lecturer at the School of Physical
A monitoring and evaluation framework
Education, Sport and Exercise Sciences at the University of Otago. Dr Phillips' work in
this area culminated in her PhD entitled A Journey to Belonging: Explorations of Māori A sector wide monitoring and evaluation framework will be developed to inform progress
Perspectives of Water Safety which analysed Māori oral narratives such as pūrākau with the strategy, and report on the expected outcomes each year. This will fulfill the
(creation stories), mōteatea (chants), karakia (incantations), whakataukī (proverbs) and statement of service performance reporting obligations with sector funders, and the
pepeha (tribal aphorisms) to better understand water safety and drowning prevention individual organisation’s evaluation of their own involvement working towards the sector’s
from a Māori perspective and help reduce the high drowning rate of Māori in Aotearoa. strategic goals. This continual process of monitoring and evaluation will determine how we
Dr Phillips employed interface research examining the intersection between Māori and are progressing and enable the action plan to be reviewed and amended annually where
appropriate.
1 See Appendix 1: Design and development of the 2025 Strategy
NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025 23Development of the sector Knowledge Hub and consideration COVID-19, immediate and ongoing impacts
of data and research gaps
The COVID-19 pandemic continues to cause widespread economic and social disruption
A key focus of this iteration of the Water Safety Sector Strategy will be the around the world. At the time of writing, infection rates are still rising in many parts of
development of a water safety sector Knowledge Hub led by Water Safety New the world and the timeline for the vaccination of the population is still some months
Zealand. We will aim to expand data capture and use, establish data hygiene, sharing, off. The crisis has caused the biggest contraction in the global economy since records
management, privacy, data sovereignty, and ethical use of data. began, with a flow on effect in New Zealand of the disappearance of tourism revenues,
A repository of Aotearoa New Zealand and international research on drowning minimal immigration, and national restrictions to movement due to lockdown measures.
prevention, water safety and water competency will be developed so that information is All these factors, along with slower population growth, an ageing population and
collected at a single point and is easily accessed and disseminated. This centralised data more workers retiring than entering the workforce, will influence our population’s
and research will include distilling and disseminating the best available evidence from demographics, and may give rise to increased uncertainty and increased inequality.
research, practice and experience. It will then be used to better inform decision-making Aotearoa New Zealand is generally regarded as a country with a high level of social
and to develop evidenced-based insights and to improve policy, and action water safety cohesion, given our considerable diversity; but underlying vulnerabilities and issues
interventions. remain that are yet to be fully addressed2. The COVID-19 crisis has brought into stark
Alongside the development of the Knowledge Hub, work will be undertaken to relief the position of those who were already in social and economic difficulties.
highlight data and research gaps relating to water safety and drowning prevention. There is likely to be a disproportionate impact on the most vulnerable segments
Improving drowning and water related hospitalisation data across countries has been of society, with the likelihood that existing inequality will worsen. [3]
identified by the World Health Organisation as a key strategy to better understand the New Zealand’s early elimination strategy has resulted in a much lower prevalence of
full extent and circumstances of drowning, to target interventions and evaluate their COVID-19 compared to many other countries. The recovery from the initial downturn
effectiveness. [2] has been swift, despite the return to higher alert levels during August and September.
Further work in Aotearoa New Zealand is required to validate water related incidents, In line with the stronger domestic recovery, the unemployment rate is forecast to peak
injury and hospitalisation data, so that we can ensure that the information gathered is at 6.9% by the end of 2021, compared to the 7.8% forecast in the September 2020
reliable and consistent. Pre-Election Update. In comparison the unemployment rate peaked at 6.6% during
the Global Financial Crisis.
There are a number of areas where drowning prevention research is currently being
undertaken in Aotearoa New Zealand. Further understanding is required regarding Those already vulnerable are expected to bear the brunt of the rise in unemployment
the impact of alcohol and drugs on the drowning and non-fatal drowning statistics. in 2021. With the anticipated increase in jobless over the next year, we are expecting to
We also need to be conscious about factors that may affect us that are imminent, see a rise in the number of families supporting themselves by kai/food gathering in our
and the possible impacts they might have on our society (and statistics). With the waterways. This may well lead to increased drownings or hospitalisations and is an area
development of the Knowledge Hub, these areas of potential research will be that the sector needs to be monitoring closely.
prioritised so the sector is kept abreast of future trends. Alert levels 3 and 4, and the associated restriction to movement, resulted in a significant
reduction in the number drowning. This will distort our 2020 statistics and five-year
2 Half Year Economic and Fiscal Update 2020 – 16th December 2020 – The Treasury rolling averages for some time.
https://www.treasury.govt.nz/system/files/2020-12/hyefu20.pdf
24 NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025DrownBase™ data methodology Non-fatal drowning – the impact on
The data and infographics presented in the New Zealand Water Safety Sector Strategy individuals, families, and society
2025 are drawn from Water Safety New Zealand’s DrownBase™ and the online Water
The World Health Organisation defines drowning as “… the process of experiencing
Safety New Zealand provisional Drowning Report 20203.
respiratory impairment from submersion/immersion in liquid”. [5] Outcomes are
DrownBase™ is the official integrated drowning database of Water Safety New Zealand. classified as death, morbidity and no morbidity. Morbidity is defined as a decline from
It was developed in 1994 to maintain details of all drownings (mortality and morbidity) the individual’s functional capacity prior to the drowning.
that have occurred in Aotearoa New Zealand waterways since 1st January 1980.
There has however, been a limited consensus of a definition for non-fatal drowning
The database is a vital tool for the New Zealand water safety sector and is considered
which often result in hospitalisations. This has given rise to data inconsistencies which
integral to the evidence base by allowing analysis of drowning data to provide targeted
have hindered research efforts and underestimates the burden of non-fatal drowning
programmes and initiatives, improve funding decisions, target advocacy and develop
on society. In order to improve and provide more comprehensive reporting,
research. New Zealand’s Drownbase™ is considered to be world leading and to have one
an international working group was formed in 2017. The outcome of the working group
of the three best “unintentional drowning” databases in the world alongside Australia
was to provide a definition and categorisation for non-fatal drowning. [6]
and Canada. [4]
The impact of non-fatal drowning may be catastrophic for an individual, where they
The success of Drownbase™ is due to the partnership between Water Safety
may suffer long term neurological impairments. There is also the significant ongoing
New Zealand, New Zealand Police, the Coronial Services of the Ministry of Justice
impact on the individual’s family, society, hospitals and the wider health sector. As
and the New Zealand Health Information Service. All care is taken to ensure that the
part of the 2025 strategy, Water Safety New Zealand will facilitate working with
information in DrownBase ™ is as accurate as possible. Please note, however, that
organisations to strengthen the consistent reporting of water related incidents, injury
figures may change depending on the outcome of coronial investigations. At any point
and non-fatal drowning hospitalisation data. This will give the sector confidence in the
in time there may be several deaths which have been referred to the coroner, with
data being reported, allow us to target interventions to reduce water related injury and
ongoing coronial investigations. It is more likely to affect more recent years’ data
hospitalisations, and, as a result, reduce the burden on individuals, families and society.
as this is where investigations are still likely to be underway4.
Drowning hospitalisation numbers are increasing year on year in New Zealand.
Drowning rates per 100,000 people are calculated using population data from Statistics
943 people have been hospitalised over the 5 year period5 from 2015-2019 for non-fatal
New Zealand publications. Percentages and averages are presented as whole numbers
drowning, compared to 408 preventable drowning deaths over the same period.
and have been rounded up or down accordingly.
This identifies a preventable drowning death to survival ratio of 1: 2.31 fatal to
The data presented in this document relates to preventable drownings. Preventable non-fatal drownings. We may well find that with the increased funding received in
fatalities include recreational and non-recreational drowning deaths. It excludes 2020 for frontline rescue, that fatalities track down with more and quicker rescues
drowning deaths as a result of road or air vehicle accidents, suicides or homicides, but that hospitalisations continue to track up for some time to come. A close watch
or deaths from natural or unknown causes. on the drowning death to survival ratio will be necessary.
Further understanding of the impact of non-fatal drowning in New Zealand is needed.
Non-fatal drowning and hospitalisations have been identified as a gap in research and
one where we need to improve our knowledge and goal setting.
3 https://watersafety.org.nz/2020-Report-Provisional
4 Water Safety New Zealand (WSNZ) gives no warranty as to the correctness of the information or the data
5 Water Safety New Zealand. DrownBase™
provided as it is supplied to WSNZ by third parties not under its control. While WSNZ is satisfied as to its
accuracy for the purposes for which it is supplied to it, WSNZ shall not be liable for any loss or damage
NEW ZEALAND WATER SAFETY SECTOR STRATEGY 2025 25ta l Peop
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